Level and Trend of Basic Education of Children in Bangladesh:

Transcription

1 Educational Studies, Vol. 28, No. 1, 2002 Level and Trend of Basic Education of Children in Bangladesh: SAMIR R. NATH & A. MUSHTAQUE R. CHOWDHURY Research and Evaluation Division, BRAC, 75 Mohakhali, Dhaka 1212, Bangladesh SUMMARY Using data generated through two nationally representative sample surveys, this paper explores the trends in the level of basic education of Bangladeshi children. The instrument used for the purpose was based on the Declaration of the World Conference on Education for All (WCEFA, Jomtien, 1990). The ndings reveal that the level of basic education increased very slowly, 26.7% in 1993 to 29.6% in 1998, less than one percentage point per year. Statistically signi cant improvement was observed in life skills knowledge and writing skills, but not in reading or numeracy. Girls progressed in reading, writing and life skills, while the boys in writing and life skills. Over the period, the level improved for rural children but decreased for urban children. Bangladesh falls much behind the targets of the Jomtien Conference in 1990; it will have to wait until 2093 AD to reach the WCEFA goal. The country has made good progress in increasing the access to primary education, but a massive drive is necessary to improve the quality of education. Introduction The World Conference on Education for All (WCEFA) held in Jomtien in 1990 had led to remarkable educational efforts world-wide (King, 1993; Buchert, 1995; McIntosh, 1999). The Conference urged the participating nations to provide basic education to at least 80% of the children of primary school age group (WCEFA, 1990). It not only reiterated the educational needs of the people, but also for the rst time emphasised quality matters along with the expansion of education (Youngman, 1993; Bergmann, 1996). The Conference Declaration de ned basic education as education intended to meet basic learning needs, which in turn was de ned as knowledge, skills, attitudes and values necessary for the people to survive, to improve the quality of their lives, and to continue learning (WCEFA, 1990). As a signatory to the Jomtien Declaration, Bangladesh is committed to imparting basic education to its children (Primary and Mass Education Division, 1995). After the conference, new attempts were made to expand educational opportunities among children, including disadvantaged groups, and to ISSN print; online/02/ Ó DOI: / Taylor & Francis Ltd

2 78 S. R. Nath & A. M. R. Chowdhury improve the quality of education through improved curricula and innovative projects. Many of these are in direct response to the Jomtien Conference. The rst initiative was the Primary Education (Compulsory) Act 1990, which was passed in the Parliament immediate after the Conference (Government of Bangladesh, 1990). The act was implemented in 1991 in some selected areas and all around the country since Free distribution of textbooks, which was introduced earlier, was strengthened during this decade. In order to strengthen the primary and mass education activities, a ministry-level separate division was established in August This division was entrusted with the responsibility for the formulation and implementation of policies and plans for this sub-sector. To ensure regular monitoring of the implementation of compulsory primary education, a separate unit named the Compulsory Primary Education Implementation and Monitoring Unit was established under the Directorate of Primary Education. Satellite schools were established to help the disadvantaged children, and Community schools were introduced in the areas with no schools. Primary education is free for all children in government schools and, for rural girls, it is free up to grade ten. Provision of scholarship was also introduced to keep the girls in schools and a Food for Education (FFE) programme was initiated in selected areas with a view to enabling the children of poor families to attend schools and complete the ve-year primary education cycle. To replace the old curriculum of , a new curriculum based on 53 terminal competencies was implemented at school level from 1992 (National Curriculum and Textbook Board and UNICEF, 1988). It is considered more inspiring, imaginative and is expected to carry/sustain the interest of young minds vis-à-vis the old curriculum, which was blamed as content based (Alam & Hussain, 1999). With support from the British government, a new project called Effective Schools through Enhanced Education Management (ESTEEM) was initiated recently. Another project named Intensive District Approach to Education for All (IDEAL), emphasising local-level planning, was introduced with support from UNICEF. A Directorate of Non-Formal Education was set up by the government, which works for the hard to reach children and emphasises the government non-governmental organisation (NGO) partnership in primary education. The government prepared a National Plan of Action in 1995 towards meeting the goals set by the WCEFA (Primary and Mass Education Division, 1995). A National Children Policy (NCP) was also enunciated in 1994 in line with the Convention on Rights of Children (CRC). Besides these government efforts, the NGOs and private initiatives are also active in the development of primary education. Complementary to the government initiative, the NGOs are operating non-formal education programmes in different locations in the country. A major expansion of NGO schools occurred from 1990 onwards. At present, there are many types of institutions that provide primary-level education in Bangladesh. The state-owned schools, however, are dominant, with over two-thirds of the total enrolments (Chowdhury et al., 1999). Fifteen per cent of the students enrol in non-government primary schools (registered and unregistered), 8.5% in NGO-operated non-formal schools, 5.9% in madras-

3 Basic Education of Children in Bangladesh 79 sas 1 and 2.9% in other types. The net enrolment rate at primary stage is 77% and the attendance rate is 62%. Nearly 73% of the enrolled children complete the ve-year cycle of primary education, of which 38% are repeaters. Gender parity in terms of enrolment, attendance and completion has been achieved recently. The adult literacy rate, according to government statistics, has increased from 34.6% in 1990 to 51.2% in 1998 (Bangladesh Bureau of Education Information and Statistics, 1992; UNICEF, 1998). Regional variations persist in different internal ef ciency indicators of education (Chowdhury et al., 1999). Attempts were made, mostly at non-governmental levels, to monitor the progress in primary education. Borrowing the concept of basic education from the Jomtien Declaration, a practical methodology and measuring instrument were developed in the early 1990s (Chowdhury et al., 1992, 1994) and two national surveys were conducted in 1993 and 1998 to measure the quality of basic education. Using the data generated through these surveys, this article explores the changes and dimensions in the level of basic education of children in Bangladesh. Methodology The methodology and the assessment instrument, used for this study, were developed in Bangladesh in 1992 (Chowdhury et al., 1992, 1994). In doing so, the de nitions of basic education and basic learning needs as recommended by the WCEFA were adopted, and the following de nition of basic education was set for Bangladesh: Basic education will refer to education intended to develop basic learning skills (i.e., the 3 Rs) as well as some basic life skills necessary for the children to survive, to improve the quality of their lives and to continue learning. The instrument used for the study was curriculum independent, but the competencies measured through this instrument were very basic among those terminal competencies expected to be achieved through primary schooling in Bangladesh (National Curriculum and Textbook Board and UNICEF, 1988). It addressed four competencies: reading, writing, numeracy and life skills/knowledge. The items/questions chosen were based upon the goals of the Education for All (EFA) and country s of cial de nition of literacy. The following describes the items/questions under different competencies. Life skills: There were ten questions which tested child s knowledge of issues relevant to development. These include knowledge on health and hygiene, poultry and livestock, population, basic attitude towards gender equity, and the outside world. Children answering correctly at least seven of the ten questions were considered to have life skills/knowledge. Reading: The children were given a short passage of seven sentences to

4 80 S. R. Nath & A. M. R. Chowdhury read out loud or to him/herself, and afterwards were asked four questions. The passage was simple, described traditional Bangladeshi life and conveyed important development messages related to savings, small family and schooling. The questions were both direct and indirect. Children answering correctly at least three of the four questions from the reading comprehension passage were considered to have reading skills. Writing: The child was asked to write a letter to his/her father or other relative to communicate a given message. It should be mentioned that a person s capacity in communicating through letters is an important element of the de nition of literacy used in the national censuses in Bangladesh. Children correctly communicating the given message through letter were considered to have writing skills. Numeracy: The children were asked to solve four mental arithmetic problems needing skills in addition, subtraction, multiplication and division. These problems were related to situations that occur in day-to-day life of the children. Children answering correctly at least three questions were considered to have numeracy skills. Children satisfying all the four criteria of reading, writing, numeracy and life skills/knowledge were considered to have basic education. A group of experts worked in the development of the instrument, con rming its content validity (Chowdhury et al., 1992, 1994). A linear positive relationship between the performance in each of the items and the years of schooling of the children, and statistically signi cant positive relationship between parental education and children s level of basic education con rmed its internal validity (Nath et al., 1993; Chowdhury et al., 1999). A wide variation in achievement was observed between the children of poor and good schools, and between the poor and the good students in a class (Chowdhury et al., 1994). All these evidences indicate the validity of the test instrument used in the study. Study Population The of cial primary schooling age in Bangladesh is 6 10 years (Government of Bangladesh, 1990). We assessed the level of basic education of the children just above this age range, viz years, irrespective of schooling. Thus, the population of this study included all children in Bangladesh aged years in 1993 and About 5.5% of the Bangladesh population fell in this age group. Sampling Strategy The basic educational achievement of the children was assessed dichotomously, i.e. each child either had or had not attained it. For a precision level of 7% with a 95% con dence limit, it was estimated that a sample of 196 is necessary to have a single estimate (Cochran, 1977; Kalton, 1983). As a cluster-sampling

5 Basic Education of Children in Bangladesh 81 TABLE I. Study sample at a glance Rural Urban Survey No. of No. of year districts strata Boys Girls Boys Girls Total * *Two districts were not included in the sampling frame due to political unrest in the areas. approach was followed in the surveys, the sample size was doubled to reduce the cluster effect on the estimate. The required sample size for an estimate thus stood at 392. The 1993 national survey on basic education contained six sub-national surveys, of which ve were in the then ve rural administrative divisions and one in urban Bangladesh. On the other hand, in 1998, eight sub-national surveys were carried out. Of these, six were in six rural administrative divisions, one in the metropolitan cities and the rest in the non-metropolitan urban areas. A three-stage sampling strategy was followed in both the surveys. At the rst stage, 30 thanas 2 (pourasava for urban areas) were selected through the systematic random sampling technique with probability proportional to size (PPS). At the second stage, one union 3 (ward for urban strata) for each selected thana/ pourasava was selected randomly. At the third stage, one village 4 (mahallah for urban strata) was randomly selected from each selected union/ward. This means that 30 villages/mahallahs (here called cluster) were selected for each stratum, totalling 180 for the 1993 survey and 240 for the 1998 survey. From each cluster, 14 children aged years, irrespective of schooling, were selected, following a systematic random sampling procedure. Thus, each cluster contained 420 children. Table I shows more details of the sample. The data collection for the rst survey was done in February 1993 and the second survey in October November 1998 about 5.5 years between the two surveys. Details about the eldwork procedure of the surveys are available in Nath et al. (1993) and Chowdhury et al. (1999). Reliability of Data The reliability of the data was assessed in two ways. First, re-interviews of some selected items in the sub-samples were done within one week of the main interview. The matching operation between the data of the main interview and the re-interview in both surveys showed a perfect match in over 90% of the cases. Using the test retest method (Gupta & Kapoor, 1994), the reliability coef cient was found to be 0.96 and 0.93 respectively for 1993 and 1998 data. Secondly, the Kudar Richardson formula number 20 (KR 20) was used to nd

6 82 S. R. Nath & A. M. R. Chowdhury TABLE II. Percentage of children satisfying basic education criteria by area of residence, sex of children and year Rural Urban All Year Boys Girls Both Boys Girls Both Boys Girls Both,,,, * * Remarks ns ns p 0.05 ns p 0.05 p 0.05 ns ns p 0.01 Notes: Differences between rural and urban areas are statistically signi cant (p, cases. *p, 0.05; ns 5 not signi cant at p ) in all six the reliability coef cient (Kudar & Richardson, 1937; Carmines & Zeller, 1979). The coef cient was found to be 0.88 for 1993 and 0.96 for All these coef cients are much higher than the satisfactory level of 0.80 (Carmines et al., 1979). Data Analysis Technique To nd the level of attainment of the children interviewed, bivariate analysis was done for basic education and its different components. In each case, the data were arranged by survey year, sex and area of residence (rural/urban). An appropriate statistical test (chi square) was performed to identify the signi cance of the variations among the estimates. As strata population varied substantially, appropriate weights were used to calculate the aggregate estimates. Results Trends in the Level of Basic Education Using the working de nition of basic education as mentioned earlier, 26.7% of the children surveyed satis ed all four criteria of basic education in 1993, which rose to 29.6% after ve-and-a-half years in 1998 (p, 0.05) (Table II). While the level of basic education of the rural children increased from 23.4% in 1993 to 26.5% in 1998 (p, 0.05), it decreased in urban areas, from 55.7% in 1993 to 48.4% in 1998 (p, 0.05). Although the boys did better than the girls in both the surveys, the gender gap became statistically signi cant in 1998 (p, 0.05). This happened because the urban girls performed signi cantly worse than the boys in No gender variation was observed among the rural children in any of the surveys. In both the surveys, urban children showed signi cantly better performance than their rural counterparts (p, 0.001); similar results were found when the data were arranged for girls and boys separately. Children were considered to have partial basic education if they satis ed

7 Basic Education of Children in Bangladesh 83 between one and three criteria of basic education. As the level of basic education increased between 1993 and 1998, the levels of partial basic education and no basic education decreased. In 1993, 59% of the children had partial basic education and 14.3% had no basic education. In 1998, the level of partial and no basic education reduced to 57.6% and 12.8% respectively. Gender-wise arrangement of the data shows that the proportion of girls attaining no basic education reduced from 19.4% in 1993 to 16.4% in However, it remained the same for the boys in both years. Table III presents the trends in the levels of the four competencies between the two surveys. In both the surveys, the performance in life skills knowledge was poor, but it was very good in numeracy. A moderate performance was observed in reading and writing. In life skills/knowledge, however, the level signi cantly increased from 35.6% in 1993 to 43.3% in 1998 (p, 0.001). The increase was seen more among the children of rural areas than the urban areas. Increased performance was also observed separately for both boys and girls (p, 0.001). There was no signi cant improvement in the level of reading skills of the children over the period of ve and a half years. On average, half of the interviewed children satis ed the criteria for reading skills in both the surveys. The performance of the rural children did not change much between the surveys, but it signi cantly decreased for the urban children (p, 0.01). Although boys had achieved better than girls in reading skills in 1993 (p, 0.001), the gap had disappeared by In writing skills, the performance of the children increased signi cantly from 44.1% in 1993 to 51.4% in 1998 (p, 0.001). The increase was seen more in rural areas than in urban areas. Overall, the increase was observed equally in girls and boys. Although boys performed better than the girls in 1993 (p, 0.001), no gender variation was found in writing skills in In terms of numeracy skills, no aggregate change was observed over the period. The performance, however, signi cantly deteriorated for urban children (p, 0.01). Boys who showed better performance in 1993 continued to do so in 1998, even when the data were arranged for urban and rural children separately. In sum, the urban children did signi cantly better than the rural children in all the assessment areas in both the surveys (p, 0.001). Over the period, the rural children showed improvement in life skills and writing, while the urban children deteriorated in reading and numeracy. Gender-wise, girls showed improvements in three areas life skills, reading and writing while the boys in two life skills and writing. Trends in Literacy Level Literacy includes all the criteria of basic education minus life skills/knowledge. In other words, it is nothing but the 3 Rs. We have analysed the data with this criterion as well. This was done because some may argue that, although it is important to achieve basic life skills/knowledge for a child, it is not equally

8 84 S. R. Nath & A. M. R. Chowdhury TABLE III. Percentage of children satisfying different components of basic education by area of residence, sex of children and year Rural Urban All Year Boys Girls Both Boys Girls Both Boys Girls Both Life skills/knowledge,,,,,,,,,,,,,,,,,, Remarks p p p ns ns ns p p p Reading skills Remarks ns p 0.05 ns p 0.05 ns p 0.01 ns p 0.05 ns Writing skills * Remarks p 0.05 p p ns ns ns p 0.05 p p Numeracy skills Remarks ns ns ns ns p 0.01 p 0.01 ns ns ns Notes: Differences between rural and urban areas are statistically signi cant (p, 0.001) in all 24 cases. *p,.05; p, 0.001; ns 5 not signi cant at p

9 Basic Education of Children in Bangladesh 85 emphasised in all types of primary education provisions in Bangladesh. Thus, for comparison between different types of schools literacy is suitability preferred. Similar to basic education, the literacy level increased between 1993 and 1998, from 39.6% to 42.5% (p, 0.05) (Table IV). Area-wise arrangement of the data shows that the literacy level increased for rural children (p, 0.05), but decreased for urban children (p, 0.01). The gender difference in literacy in favour of boys was found in both the surveys, but the gap narrowed over the period. It is interesting to observe that, while the rural girls have overcome the gender gap over the period, the urban girls could not do so. Similarly to basic education, rural children were lagging behind their urban counterparts in literacy level in both the surveys (p, 0.001). Schooling and Achievement To understand the relationship between the level of basic education and literacy with schooling, the level of performance was analysed by number of years of schooling completed by the children (Tables V and VI). It was observed that both basic education and literacy signi cantly increased with years of schooling (p, 0.001). Similar results were found when data were analysed separately for rural and urban children. However, if we look at the difference in the achievement levels between urban and rural children against each of the completed years, it is found that rural children showed poorer performance at each grade of learning, and that the rural children lagged behind urban children by at least one year. This is true for both 1993 and However, at each stage of learning the level of achievement increased over time. It is clear from the ndings of the Tables V and VI that it was not possible for the children of Bangladesh to achieve the WCEFA goal for basic education through the ve-year cycle of primary education, even without an additional year of secondary schooling. However, among the children with six or more years of schooling, over 80% had satis ed literacy criteria. The quality of primary education has possibly improved over the period. For children completing ve years of schooling, the level of basic education increased from 42.2% in 1993 to 56.9% in 1998 (Table V), and the literacy level increased from 64.9% to 73.9% respectively (Table VI). These increases are statistically signi cant. The students of different types of schools did not achieve equally. The children in state-owned formal schools performed poorly, and the children in non-formal schools performed signi cantly better than those in other types of schools. Years Needed to Achieve the WCEFA Goal According to the Declaration of the Jomtien Conference, the participating nations are committed to imparting basic education to at least 80% of schoolaged children. Assuming that the level tested through the ABC represented the

10 86 S. R. Nath & A. M. R. Chowdhury TABLE IV. Percentage of children satisfying literacy criteria (the 3 Rs) by area of residence, sex of children and year Rural Urban All Year Boys Girls Both Boys Girls Both Boys Girls Both 1993,,,,,, * Remarks ns p 0.01 p 0.05 p 0.05 ns p 0.01 ns p 0.01 p 0.05 Notes: Differences between rural and urban areas are statistically signi cant (p, 0.001) in all six cases. *p,.05; p, 0.01; p, 0.001; ns 5 not signi cant at p

11 Basic Education of Children in Bangladesh 87 TABLE V. Percentage of children satisfying basic education criteria by years of schooling completed, area of residence and year Years of schooling Rural Urban All Rural Urban All 1,,,,,, One Two Three Four Five Six Remarks p p p p p p Note: Children without schooling could not satisfy the criteria of basic education. basic minimum for basic education, an attempt was made to measure how far behind the Bangladeshi children aged years were from this goal. Table VII shows that Bangladeshi children aged years would need a staggering 95 years more to reach the goal, similarly for both boys and girls. Even the children who completed the ve-year cycle of primary education were behind the WCEFA goal. At the rate of increase observed between 1993 and 1998, it will take eight years more to achieve WCEFA goal, separately ve years for boys and 14 years for girls. The above analysis indicates that Bangladeshi children aged years will not meet the WCEFA goal of basic education until 2093 AD, and it will be 2006 AD before this was achieve by the children completing the ve-year cycle of primary education. If the analysis is done without considering the life skills/knowledge the nation would need 71 years to provide literacy to 80% of its children and only four years for those completing the primary cycle. TABLE VI. Percentage of children satisfying literacy (the 3 Rs) criteria by years of schooling completed, area of residence and year Years of schooling Rural Urban All Rural Urban All 1,,,,,, One Two Three Four Five Six Remarks p p p p p p Note: Children without schooling could not satisfy the criteria of literacy.

12 88 S. R. Nath & A. M. R. Chowdhury TABLE VII. Projected year at which Bangladesh can meet the WCEFA goal of basic education, for all children and children completing ve years of schooling All children Children completing grade V Boys Girls Both Boys Girls Both Level at 1993 (%) Level at 1998 (%) Total increase (%) Increase per year (%) Years needed to achieve WCEFA goal Year of achievement Note: Interval between the two surveys is 5.5 years Discussion and Conclusion This paper examined the progress made in the level of basic education for the children in Bangladesh between 1993 and Data generated through two nationally representative sample surveys conducted during those two periods were used for the purpose. The same instrument was used in the surveys and was developed on the basis of ideas and concepts expounded in the Declaration of the WCEFA, Following the Conference many steps were taken by the government and the non-government agencies in Bangladesh to increase the access to education and to improve the quality of education at primary level. According to the National Plan of Action on Education, the government of Bangladesh is committed to the goals of the Jomtien Conference (Primary and Mass Education Division, 1995). It may be mentioned that the WCEFA Declaration called upon the participating nations to impart basic education to 80% of its school aged children by 2000 AD (WCEFA, 1990). According to the ndings presented in this paper, the level of basic education of children aged years signi cantly increased between 1993 and 1998 from a low baseline of 26.7%. However, the rate of increase has been too slow at only 0.53 percentage point a year, which indicates that Bangladesh is progressing very slowly in ensuring basic education for its children. Although there was little gender variation in the achievement level ve-and-a-half years ago, disparity against girls had become a reality by 1998, which was mostly con ned to urban children. There is also an overall decrease in the basic educational achievement in urban areas between the two periods. There has been an enormous increase in the urban population of the country in recent years, but a concomitant increase in the services has not taken place, leading to a deterioration in the urban situation. Skill-wise analysis of the data showed that children continued to do very well in numeracy but worse in life skills. Although, the performance in life skills knowledge signi cantly increased over the period, nearly 60% of the

13 Basic Education of Children in Bangladesh 89 children could not attain the minimum level in this area. The reason behind this poor performance might be attributed to the insigni cant attention given to this issue. Although the Jomtien Conference strongly advocated life skills knowledge along with the 3 Rs, no special effort was given to this area by the mainstream schools in Bangladesh. However, the NGOs emphasised the issue in their non-formal education system. Good performance of children from the non-formal education programmes in basic life skills is supported by many studies conducted in recent years (Nath & Chowdhury, 1996; Nath, 1997; Nath et al., 1998, 1999). The performance of the children was also unsatisfactory in reading and writing; slightly over half the children satis ed the minimum levels in these two assessment areas. Although the girls were less competent than the boys in reading and writing in 1993, interestingly the gender gap disappeared in these areas when examined in Reduction of gender gap with the increase in level of writing skills was a good indication of progress. Schools in Bangladesh need to give greater emphasis to reading, writing and life skills. Although the children showed very good performance in numeracy, gender disparity against girls was observed in both the surveys. Other studies in Bangladesh also indicated such difference between boys and girls (Nath et al., 1997; Nath, 1998). Good performance in numeracy is understandable, since the items taken for the assessment are very simple and cover situations that occur in everyday life. Gender disparity in numeracy should be handled seriously. Data analysis by years of schooling showed that the girls were lagging behind the boys in numeracy at each grade of learning. The gender difference occurred even in children who never been to school (Nath et al., 1997). No attempt has been made in Bangladesh towards equity in mathematics and science. Many developed countries removed the disparity at primary stage, Bangladesh may take lessons from them. Statistically signi cant improvement in the level of basic education of rural children is noteworthy, but their performance level was very poor compared with their urban counterparts. It was clearly observed that rural children were lagging at least one year behind their urban counterparts. About 80% of the Bangladeshi children live in rural areas, and overall national progress depends largely on the development of these children. The WCEFA Declaration, however, emphasised equity: Bangladesh is yet to achieve it in the areas of basic learning attainments. The study observed that Bangladesh is far behind what is expected by the WCEFA Declaration. The country will have to wait until 2093 AD to achieve the basic educational goal for 2000, meaning that Bangladesh is still 94 years behind the desired time. To understand the standard of our primary education, consider those children who completed the ve-year cycle of primary education. The WCEFA goal was not attained even among them. However, the level of progression was faster among this group compared with what happened in all children. The rate of increase was higher among boys than girls. This means that the goal can probably be reached earlier if the present enrolment and completion rates are increased rapidly. At present, 77% of the primary schooling

14 90 S. R. Nath & A. M. R. Chowdhury age children are in schools, and the ve-year cycle completion rate is 73%, of which only 48% complete it in due time (Chowdhury et al., 1999). This means that 32% ( ) of the school-going children receive some meaningful education, and only 21% ( ) of the same get it in due time. Greancy et al. (1998) also raised questions about the quality of primary and secondary schooling in Bangladesh. Now the question is what Bangladesh can do to provide basic education to all children at the right age. The data used in this study and other studies indicated that the children of Bangladesh do not enrol in school at the right age (i.e. at age six, as mentioned in the Compulsory Primary Education Act 1990). Thus, only a few children receive a full course of primary education at the age determined by the government. Steps should be taken to enrol all children in school at age six. This statement may contradict the policy of the non-formal education programmes, because the debate between formal and non-formal education is not just a curriculum problem but a problem of age too. Non-formal programmes generally consider the children who missed the opportunity to be educated at the right age. It is obvious that this opportunity should be continued until the country reaches the goal of EFA. On the other hand, nearly 90% of the currently enrolled children are covered by the formal systems and parents/guardians of the 37% of the non-enrolled children (aged 6 10 years) think that these kids are too young to go to school (Chowdhury et al., 1999). Thus, attempts may be taken at parent/guardian level to improve the situation. In Bangladesh, the formal school students are to sit exams at the end of each grade. If the students fail to secure minimum marks (33% separately in each subject area), they will not be promoted to the next grade. These students repeat years in the same grade, and this delays completion. To reduce such repetition, the grade-wise required level of lessons should be ensured for the students. The teachers and the local education administration need to be active in this regard. Since such a wide gap exists between the current level of basic education and the goal, Bangladesh needs to revise the goal according to its capacity. Again, if the country has to wait so long to achieve such a minimum level of basic education, it will fall far behind other developing countries, and will fail to meet the challenges of the new millennium. The only way to meet the challenge is to put great effort into ensuring quality education for all its children. The Compulsory Primary Education Act concentrated only on the enrolment of children; it says nothing about the quality of education (Government of Bangladesh, 1990). The Act has rightly emphasised enrolment, but it also needs to emphasise quality; an amendment is thus imperative. Criteria for the minimum standard of quality education may be set in the Act and responsibility may be given to the compulsory primary education committees (at both local and national levels) to ensure the minimum standard. A monitoring system may be adopted and the results of this exercise may be made public at local and national levels. The data also suggest that the performance of the students of government primary schools was poorer than the students of other types of school. Given that such schools enrol over two-thirds of the students at primary level (Chowd-

15 Basic Education of Children in Bangladesh 91 hury et al., 1999), more input is thus required to the state-run primary schools to have maximum impact. The government often claims that education is given priority in budgetary allocation; however, this allocation is much less than what is expected. Only 2.3% of the gross national product is spent on education (Haq & Haq, 1998). Moreover, much of this is spent to meet teacher s salaries and other administrative matters, leaving very little for academic development (Ahmed et al., 1993; Chowdhury et al., 1999). Increased allocation as well as redistribution of the education budget should be seriously considered for the sake of quality basic education. Acknowledgements The rst survey was nanced by UNICEF and the second survey was funded by NOVIB of Holland, Sida, UNESCO and BRAC. The Research and Evaluation Division of BRAC shouldered the implementation of the surveys and the Campaign for Popular Education (CAMPE) provided the secretariat during the second survey. The authors are grateful to the above organisations for their help. The individuals who served in the Advisory Board and the Working Committee also deserve acknowledgement. Thanks to the eld investigators and the children interviewed. NOTES [1] Madrassas provide education with special emphasis on Islamic principle. Curricula of these schools are developed by an independent Board. These schools may be State owned or privately managed. [2] Thana: a government administrative unit with an average population of 260,000. [3] Union/ward: a local government unit with an average population of 22,000. [4] Village/Mahalla: The smallest component of the local government unit, with an average household of 250 and population of REFERENCES AHMED, M., CHABBOTT, C., JOSHI, A., PANDE, R. & PRATHER, C.J. (1993) Primary Education for All: learning from BRAC experience, a case study (New York, Advancing Basic Education and Literacy). ALAM, M. & HUSSAIN, H. (1999) A review of primary education development in Bangladesh, in: A.M.R. CHOWDHURY, R.K. CHOWDHURY & S.R. NATH (Eds) Hope not Complacency State of Primary Education in Bangladesh 1999 (Dhaka, Campaign for Popular Education, University Press Limited). BANGLADESH BUREAU OF EDUCATION INFORMATION AND STATISTICS (1992) Bangladesh Education Statistics 1991 (Dhaka, Bangladesh Bureau of Education Information and Statistics, Ministry of Education, Government of Bangladesh). BERGMANN, H. (1996) Quality of education and the demand for education evidence from developing countries, International Review of Education, 42, pp BUCHERT, L. (1995) The concept of education for all: what has happened after Jomtien? International Review of Education, 41, pp CARMINES, E.G. & ZELLER, R.A. (1979) Reliability and Validity Assessment, Sage University Paper series on Quantitative Applications in the Social Sciences, (Newbury Park, CA, Sage).

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